At the DOJ rules hearing in Pewaukee, that I attended, I asked to clarify that the "50 to 1 ..." in the proposed permanent rules, was a ratio per instructor, not a 50 student limit per class. The DOJ staff person running that meeting agreed that it was a ratio, that if there were 7 instructors at the class up to 350 students could attend. I did not hear any other comments with regard to the 50 to 1 ratio, at that hearing.
Regarding how this would be enforced, when the course instructor signs the certificate or affidavit affirming that the course meets the current requirements of the DOJ, (which include the 50 to 1 ratio), If the ratio had been exceeded for that particular class, the instructor would be falsely affirming on the certificate. That will get the instructor in trouble, and I think it would make those certificates invalid.